Introduction1.1 Legislative contextThe principal solid <strong>waste</strong> legislation in New Zealand is the Waste Minimisation Act 2008 (WMA). The statedpurpose <strong>of</strong> the WMA is to:“encourage <strong>waste</strong> minimisation and a decrease in <strong>waste</strong> disposal in order to(a) protect the environment from harm and(b) provide environmental, social, economic, and cultural benefits.To further its aims, the WMA requires territorial authorities to promote effective and efficient <strong>waste</strong>management and minimisation within their district. To achieve <strong>this</strong>, all territorial authorities (TAs) are requiredby the legislation to adopt a <strong>waste</strong> management and minimisation plan (WMMP). This requirement was firstintroduced in the Local Government Acts 1974 and 2002, and most TAs had adopted a plan prior to the 2008legislation.The WMA requires every TA to complete a formal review <strong>of</strong> its existing <strong>waste</strong> management plan by 1 July2012. The review must be consistent with WMA sections 50 and 51. Prior to reviewing its existing plan,Section 50 <strong>of</strong> the WMA also requires all TAs to prepare a ‘<strong>waste</strong> <strong>assessment</strong>’. This document has beenprepared in fulfilment <strong>of</strong> that requirement.An evaluation <strong>of</strong> the <strong>Waikato</strong> <strong>District</strong> <strong>Council</strong>’s (the council) existing Waste Management Plan, which wasadopted in 2002, shows that many objectives and projects outlined in the plan have been superseded and theexisting plan does not appear to fulfil the requirements <strong>of</strong> the WMA. As a result <strong>of</strong> these issues, the councilhas decided to revoke the existing plan and prepare a new WMMP.In addition, the boundary changes to the <strong>Waikato</strong> district resulting from the amalgamation <strong>of</strong> councils in theAuckland region raise many questions around <strong>waste</strong> management that the council now needs to resolve andincorporate into its <strong>waste</strong> management planning.<strong>1.2</strong> <strong>Purpose</strong> <strong>of</strong> <strong>this</strong> <strong>waste</strong> <strong>assessment</strong>This <strong>waste</strong> <strong>assessment</strong> is intended to provide an initial step to the development <strong>of</strong> a <strong>waste</strong> management andminimisation plan (WMMP), and should provide the information necessary to identify the key issues and priorityactions that will be included in the draft WMMP.Section 51 <strong>of</strong> the WMA outlines the requirements <strong>of</strong> a <strong>waste</strong> <strong>assessment</strong>, which must include:1. A description <strong>of</strong> the collection, recycling, recovery, treatment, and disposal services provided withinthe territorial authority’s district2. A forecast <strong>of</strong> future demands3. Astatement <strong>of</strong> options4. A statement <strong>of</strong> the territorial authority’s intended role in meeting demands5. A statement <strong>of</strong> the territorial authority’s proposals for meeting the forecast demands6. A statement about the extent to which the proposals will protect public health, and promote effectiveand efficient <strong>waste</strong> management and minimisation1.3 Scope1.3.1 GeneralAs well as fulfilling the statutory requirements <strong>of</strong> the WMA, <strong>this</strong> <strong>waste</strong> <strong>assessment</strong> will build a solid foundation6
that will enable the council to develop its WMMP in an informed and effective manner. In preparing<strong>this</strong> document, reference has been made to the Ministry for the Environment’s ‘Waste Management andMinimisation Planning: Guidance for Territorial Authorities’ 1 .A key issue for <strong>this</strong> <strong>waste</strong> <strong>assessment</strong> will be forming a clear picture <strong>of</strong> <strong>waste</strong> flows and management options inthe district. The WMA requires that a <strong>waste</strong> <strong>assessment</strong> must contain:“A description <strong>of</strong> the collection, recycling, recovery, treatment, and disposal services provided within theterritorial authority’s district (whether by the territorial authority or otherwise)”.This means that the <strong>waste</strong> <strong>assessment</strong> must take into consideration all <strong>waste</strong> and recycling services carried outby private <strong>waste</strong> operators as well as its own services. While the council has reliable data on the <strong>waste</strong> flowsthat it controls, data on those services provided by private industry is very limited. Reliable, regular data on<strong>waste</strong> flows is important if the council chooses to include <strong>waste</strong> reduction targets in the WMMP. Withoutdata, any targets can not be measured.The NZ Waste Strategy 2010 also makes clear that territorial authorities have a statutory authority (under theWMA) to promote effective and efficient <strong>waste</strong> management and minimisation in their district. This applies toall <strong>waste</strong> and materials flows in the district, not just those controlled by the council.1.3.2 Consideration <strong>of</strong> solid, liquid and gaseous <strong>waste</strong>sIn line with the council’s previous <strong>waste</strong> management strategies, <strong>this</strong> <strong>assessment</strong> is focused on solid <strong>waste</strong>.The guidance provided by the Ministry for the Environment on preparing Waste Management and MinimisationPlans states that:“<strong>Council</strong>s need to determine the scope <strong>of</strong> their WMMP in terms <strong>of</strong> which <strong>waste</strong>s and diverted materials are tobe considered within the plan”.The guidance goes on to suggest that liquid or gaseous <strong>waste</strong>s which are directly managed by the council, orare disposed <strong>of</strong> to landfill, should be seriously considered for inclusion in a WMMP.The council manages most liquid and gaseous <strong>waste</strong>s through other strategies, including <strong>assessment</strong>s <strong>of</strong> services.The council’s Water and Sanitary Services Assessment was completed in 2006 and was updated in the 2009LTCCP. The Water and Sanitary Services Assessment covers management <strong>of</strong> biosolids from the council’s<strong>waste</strong>water treatment plants at Te Kauwhata, Huntly, and Tuakau.Other <strong>waste</strong>s that could potentially be within the scope <strong>of</strong> the WMMP include gas from landfills and someliquid hazardous <strong>waste</strong>s. Although there is a large landfill located within the council’s boundary, the council isnot involved in the ownership or operation <strong>of</strong> <strong>this</strong> facility and <strong>waste</strong> disposed <strong>of</strong> at the landfill originates from alarge area well beyond the boundaries <strong>of</strong> the <strong>Waikato</strong> district.Therefore, apart from some liquid hazardous <strong>waste</strong>s, <strong>this</strong> <strong>waste</strong> <strong>assessment</strong> and the subsequent WMMP willfocus primarily on solid <strong>waste</strong>.1.3.3 Public health issuesProtecting public health is one <strong>of</strong> the original reasons for local authority involvement in <strong>waste</strong> management. Thiswas set out in the Health Act 1956 - although these requirements have now been repealed 2 . The NZ WasteStrategy (2010) contains the twin high level goals <strong>of</strong> “Reducing the harmful effects <strong>of</strong> <strong>waste</strong>”, and “Improvingthe efficiency <strong>of</strong> resource use”. In terms <strong>of</strong> addressing <strong>waste</strong> management in a strategic context, protection <strong>of</strong>public health can be considered one <strong>of</strong> the components entailed in ‘reducing harm’.Protection <strong>of</strong> public health is currently addressed by a number <strong>of</strong> different pieces <strong>of</strong> legislation:1.3.4 Health Act 1956The Health Act 1956 places obligations on TAs (if required by the Minister <strong>of</strong> Health) to provide sanitary worksfor the collection and disposal <strong>of</strong> refuse, for the purpose <strong>of</strong> public health protection (Part 2 – Powers andduties <strong>of</strong> local authorities, s 25). It specifically identifies certain <strong>waste</strong> management practices as nuisances (s 29)1 Ministry for the Environment (2009), Waste Management and Minimisation Planning: Guidance for TerritorialAuthorities. Wellington. Available on www.mfe.govt.nz.2 Refer: MfE 2009: Waste Management and Minimisation Planning, Guidance for Territorial Authorities.<strong>Waikato</strong> <strong>District</strong> <strong>Council</strong> <strong>waste</strong> <strong>assessment</strong> 20117